JK 

775 






il 

llii 



i4:TH Congress, 
1st 8essio7i. 



HOUSE OF KEPRESENTATIVES 



M 



Report 
No. 742. 



MINIMUM WAGE BILL. 



it 

iiSSi 

pip 

iiii 

iiii 



May 23, 1916.— Committed to tlie Committee of the Whole House on the state of the 
Union and ordered to be printed. 



Mr. Nolan, from the Committee on Labor, submitted the foUowmg 

REPORT. 

[To accompany H. R. 11876.] 

The Committee on Labor, to which was referred the bill (H. R. 
11876) introduced by Mr. Nolan to fix the compensation of certam 
employees of the United States, having considered the same, report 
thereon with the recommendation that it pass with the loUowmg 

amendments: , ,,^ , • ,• .i • x t. 

Page 1 line 3, strike out the words ''June thirtieth, nineteen hun- 
dred and sLxteen," and insert in heu thereof the words "the beginning 
of the first fiscal year following the passage of this act." 

Page 1, line 4, strike out the word ''pay" and insert m lieu thereol 
the word "compensation." . .^ ,, • . u x. ^x. 

Page 1, line 4, after the words "United States" insert or by the 
Government of the District of Columbia." ,, 

Page 1, line 5, after the semicolon following the words per day, 
insert "or if employed by the hour, not less than thirty-seven and 
one-half cents per hour " ; . 

Page 1, line 11, after the word "compensation" insert before the 
period a comma and the words "nor to persons holding appointments 

as postmasters." -r, j f +i. 

Page 1, the following proviso to be inserted to go at the end ot tne 
first section of the biU: ''Provided further, That the provisions ol this 
act shall apply only to those persons who have been continuously m 
the employ of the Government of the United States, or m the employ 



2 MINIMUM WAGE BILL. \ *^ ^ 

of the Government of the District of Columbia, for a period of not less 
than two years, and who shall have attained the age of twenty years." 

Page 1, lines 12, 13, and 14, to be stricken out. 

Page 2, lines 1 to 15, inclusive, to be stricken out. 

Page 2, line 16, that section 3 be renumbered section 2. 

The bill as originally introduced contained three sections and reads 
as follows : 

A BILL To fix the compensation of certain employees of the United States. 

Be it enacted by the Senate and House of Representatives of the United States of America 
in Congress assembled, That after June thirtieth, nineteen hundred and sixteen, the 
minimum pay of any person employed by the United States shall be not less than 
|3 per day; or if employed by the month, not less than $90 per month; or if employed 
by the year, not less than |1,080 per annum: Provided, That the provisions of this 
act shall not apply to persons enlisted in the military branches of the Governrnent 
nor to persons receiving quarters and subsistence in addition to their compensation. 

Sec. 2. That all employees of the United States as defined in section one of this 
bill who are now receiving compensation at the rate of more than $1,080 per annum 
shall receive an increase of five per centum of the amount they are now receiving 
each year for the next four years, making, in all, a net increase of twenty per centum: 
Provided, That any employee who may receive an increase of compensation under 
section one of this act which shall amount to more than twenty per centum shall not 
be included under the provisions of this section; but any employee who shall receive 
an increase under section one of this act which does not amount to twenty per centum 
of the compensation he now receives, that brings his compensation up to the mini- 
mum amount specified in section one, shall receive a yearly increase in compensation 
of five per centum of the amount he not^ receives until the total increase shall aggre- 
gate not less than twenty per centum of the compensation he now receives. 

Sec. 3. That upon the passage of this act the heads of departments in which are 
employed persons as defined in section one of this bill shall issue new appointments 
at the increased rate of compensation herein provided. 

The amended bill contains but two sections and reads as follows: 

A BILL To fix the compensation of certain employees of the United States. 

Be it enacted by the Senate and House of Representatives of the United States of America 
in Congress assembled, That after the beginning of the iirst fiscal year following the 
passage of this act, the minimum compensation of any person employed by the United 
States or by the govermnent of the District of Columbia shall be not less than |3 per 
day; or if employed by the hour, not less than 37^ cents per hour; or if employed by 
the month, not less than $90 per month; or if employed by the year, not less than 
$1,080 per annum: Provided, That the provisions of this act shall not apply to persons 
enUsted in the military branches of the Government nor to persons receiving quarters 
and subsistence in addition to their compensation, nor to persons holding appoint- 
ments as postmasters: Provided further. That the provisions of this act shall apply 
only to those persons who have been continuously in the employ of the Government 
of the United States, or in the employ of the government of the District of Columbia, 
for a period of not less than two years, and who shall have attained the age of 20 years. 

Sec. 2. That upon the passage of this act the heads of departments in wliich are 
employed persons as defined in section one of this bill shall issue new appointments 
at the increased rate of compensation herein provided . 

The bill was referred to a subcommittee of the Committee on Labor, 
consisting of Messrs. Maher, Nolan, Van Dyke, and Denison, and pub- 
lic hearings were held thereon from March 20, 1916, to April 5, 1916. 

There appeared personally before the subcommittee representatives 
of the American Federation of Labor, the Maryland State Federation 
of Labor, Federation of Civil Service Employees of the port of San 
Francisco, the Federal Employees' Union of the District of Columbia, 

MAY 27 1916 



:x MIlSriMUM WAGE BILL. 3 

the National Federation of Post Office Clerks, the United National As- 
sociation of Post Office Clerks, the National Association of Letter Car- 
riers, the National League of Government Employees, the National 
Association of United States Civil Service Employees at Navy Yards, 
the Consumers' League of the District of Columbia, all of which organi- 
zations most earnestly indorsed the bill. There also appeared com- 
mittees and individuals representing the laborers, watcnmen, messen- 
gers, and various other low-salaried employees in the various branches 
of the Government service, including the White House, the Govern- 
ment Printing Office, the Bureau of Engraving and Printing, the 
Smithsonian Institution, the National Museum, Arlington National 
Cemetery, Public Buildings and Grounds, as well as the several navy 
yards of the United States. The testimony of these witnesses is 
printed in full in the report of the hearings of the subcommittee and 
presents the necessity for immediate remedial legislation in a most 
striking manner. 

The following statement, showing the estimated cost of living for a 
family of five, was submitted by Mr. Arthur E. Holder, representing 
the American Federation of Labor. The figures are worthy of close 
study, being based on the conditions existing to-day. Mr. Holder's 
figures show that it takes $767.95 a year to provide the bare necessi- 
ties of life for a family of five, making no allowance whatever for doc- 
tors, medicine, insurance, lodge dues, newspapers, church contribu- 
tions, or amusements, and the cost for food is based on 5 cents a meal. 
Mr. Holder's figures of 5 cents per meal per person is not given as the 
actual cost, but merely suggested as the lowest possible estimate. 

Estimated Minimum Cost of Bare Existence for Husband, Wife, and Three 
Children for a Year of 365 Days. 

[By Arthur E. Holder.] 
Food: 

3 meals per day for 5 persons at 5 cents per meal each, equals 75 cents 

per day ; for 365 days $273. 75 

Rent: 

House or rooms, at $20 per month 240. 00 

Water: 

50 cents per month 6. 00 

Clothes: 

2 suits for husband (no overcoat), at $15 each 30. 00 

3 suits of underclothes, at $1 per suit 3. 00 

1 suit for wife, with cloak 25. 00 

3 suits of underclothes, at $1 per suit 3. 00 

Clothes for 3 children, at $10 each 30. 00 

Underclothes for children, stockings, etc 9. 00 

2 pairs shoes for husband, 2 pairs for wife, at $2.50 per pair 10. 00 

2 pairs each for 3 children, at $2 per pair 12. 00 

Repairs for shoes for year (no rubbers) 3. 00 

Heat and light: 

Gas for light and cooking, at $2 per month 24. 00 

Coal, 7 tons, at $7 per ton 49. 00 

Household needs: 

Soap for laundry and bathing, 10 cents per week 5. 20 

Matches, firewood, replacing broken crockery ware, cooking utensils, etc., 
per year 10. 00 



4 MINIMUM WAGE BILL. 

Household needs — Continued. 

New bedding, tablecloths, matting, rugs, other floor covering, and re- 
placing broken or worn-out furniture, per year $20. 00 

Towels, window shades, other minor but essential articles for household 
and family wear, such as hats, caps, wraps, umbrellas, etc., classed as 
miscellaneous 15. 00 

Total cost of bare existence for family during year 767. 95 

It will be noticed that no entry has been made for the following expenses, which 
are usually necessary: « 

Street cars None. 

Tobacco None. 

Whisky None. 

Other stimulants None. 

Candy None. 

School books and other school needs None. 

Church expense None. 

Newspapers, magazines, etc None. 

Theaters, movies, excursions, social or church parties None. 

Insurance, lodge dues, trade unions None. 

Postage and stationery for correspondence None. 

Cost of births None. 

Cost of deaths None. 

Cost of sickness, medicine None. 

Cost of accidents or lawsuits None. 

Families who are shackled by the iron laws of economic necessity on an income of 
$720 per year can indulge in no extravagance, not even the necessary luxuries above 
enumerated. Their lives are circumscribed within the limits of a bare existence, 
for which there is no hope, no promise, no future. 

Prof. Keen, of the University of Washington, a national authority, 
conducted extensive investigations, and some time ago estimated 
$840 for absolute necessities. The prices have advanced since that 
estimate was made and are still going higher. 

Scores of Government employees in different sections of the United 
States, as well as many of those employed here in Washington, sub- 
mitted itemized statements of living expenses. In many instances 
these people stated they were dependent upon charity to make both 
ends meet. And in the printed record of the hearings testimony can 
be found of dozens of cases where the low-paid Government employee 
is forced to seek employment after hours and during his vacation 
period in order that he may make provision for the bare existence of 
his family. 

In connection with the rise in prices of commodities generally con- 
sumed by the lower-paid employees in the District of Columbia and 
elsewhere, the subcommittee requested Mr. Ethelbert Stewart, chief 
statistician of the Bureau of Labor Statistics, Department of Labor, 
to submit for the information of the committee and of Congress 
statistics covering a period of years from 1890 to date. Mr. Stewart 
also submitted at the request of the subcommittee statistics showing 
the purchasing value of $1 during the 26 years from 1890 to 1915. 
These statistics were gathered in 45 cities, the United States being 
divided into five geographical divisions. These statistics show the 
rise in prices has been general and not confined to any particular 
section of the United States. 

Mr. Stewart's statement before the subcommittee and the statistics 
he submitted follow : 



MINIMUM WAGE BILL. 5 

Statement of Mr. Ethelbert Stewart, Chief Statistician Bureau of Labor 
Statistics, United States Department of Labor. 



Mr. Stewart. I have here the prices of certain foodstuffs in the city oi Wash- 
ington from 1890 down to and including 1915. This material is secured by the Bureau 
of Labor Statistics monthly. In 1890 we had three grocery stores in Washington re- 
porting to us monthly; in 1915 we had seven. In 1890 the average price of round steak 
in the store reporting the lowest rate was 12.4 cents per pound; that was the average 
for the year. The highest store reported 13.3 cents per pound. In 1915 the lowest 
store was 22.3 cents a pound, as against 12.4 in 1890. The highest store in 1915 was 
27.5, as against 13.3 in 1890. 

I have intentionally selected those things that would necessarily be used by the men 
who get $60 a month as against those who get $200. For instance, I have selected 
round steak instead of sirloin. That is the cheapest cut that we carry in our price list. 
Pork chops were 10 cents in 1890 and 22.1 cents in 1915. They were 19.5 in the 
cheapest store. In other words, the price practically doubled. Now, in the salary 
grades of which you speak there has been no increase, if we take our own bureau aa 
an example. 

The man who comes in at $660 per annum is practically barred by the civil-service 
regulations from ever getting any more. He can not take an examination for the 
subclerical positions, and the jobs for which the pay is $660 per annum are held to-day 
by the same men who went into them years ago. One man at $660 has been there as 
long as I have. I have been in the bureau since 1887, a period of 29 years. 

The other positions work this way: We take a man in at $1,000. While that is 
always the entrance salary for that particular job, yet that person can go up. In 
other words, while the salary for the job remains the same, the job is not always held 
by the same person. In these $660 per annum positions that can not be clone. So 
when we say the price of pork chops has increased 100 per cent since one of these men 
took one of these positions it means that he has had absolutely no means to meet that 
increase unless he has other members of the family whom he can put to work to help 
augment the income. 

To continue price quotations, wheat flour, one-eighth of a barrel, or approximately 
24 pounds, cost 8-1 cents in 1890, while in 1900 it cost $1.14. Eggs have increased from 
22 cents to 36.5 cents. That is the average price for the year in Washington, of course. 

Butter has increased from 29.5 cents to 39.3. wliile sugar has increased from 5.5 to 6.3. 

Mr. Nolan. Those are the averages for the year? 

Mr. Stewart. Yes, sir; those are the averages for the year. That is the average of 
the monthly statements from each store. 

I would like to submit for your record, in case you want to examine the details more 
fully, this detailed table of cost, and also this shorter table, which gives the highest 
and lowest prices, by five-year periods, from 1890 to 1915. 



Average retail prices of certain specified articles of food in Washington, B.C., in each year 
from 1890 to 1915, inclusive, by firms. 





Bound 


Pork 


Ham, 


Lard, 


Flour, 
wheat. 


Pota- 
toes, 
Irish, 


Eggs, 

per 

dozen. 


Butter, 


Sugar, 
granu- 
lated, 


Year 


steak, 


chops, 


smoked, 


pure, 


per one- 


cream- 








per 






per 
peck. 




per 
pound. 




pound. 


pound. 


pound. 


pound. 


barrel 
bag. 


pound. 


1890 


SO. 124 
.125 


$0. 100 


ISO. 138 


$0. 100 
.100 


$1. 000 
.951 


$0. 271 
.254 


SO. 240 
.220 


$0. 308 
.295 


10. 055 




1 i.l38 


.067 




.133 




1.134 


.110 


.843 


.296 


.232 


.338 


.074 


1891 


.138 
.125 


.100 


1.140 
1.136 


.100 
.100 


1.009 
.973 


.308 
.300 


.246 
.249 


.329 
.304 


.051 




.050 




.134 




1.150 


.100 


.968 


.308 


.267 


.329 


.057 


1892 


.120 
.125 


.100 


1.140 
1. 136 


.102 
.103 


.933 
.958 


.279 
.241 


.242 
.238 


.350 
.308 


.051 




.049 




.117 




1.146 


.107 


.899 


.258 


.252 


.350 


.053 


1893 


.120 
.125 


.100 


1.153 
1.156 


.140 
.118 


1.000 
.916 


.296 
.313 


.236 
.225 


.346 
.307 


.054 




.055 




.116 


I 1.138 


.143 


.909 


.300 


.234 


.342 


.057 


1894 


.120 


.100 


1.145 


.115 


.808 


.258 


.218 


.338 


.051 



6 



MINIMUM WAGE BILL. 



Average retail prices of certain specified articles of food in Washington, D. C, in each year 
from 1890 to 1915, inclusive, by firms — ^Continued. 



Year. 



1894 

1895 

1896 
1897 
1898 
1899 
1900 
1901 
1902 
1903 
1904, 
1905. 
1906. 
1907. 

1908. 

1909. 

1910. 



1911. 



1912. 



Round 
steak, 

per 
pound. 



;0. 125 
.110 
.120 
.125 
.116 
.119 
.125 
.120 
.112 
.125 
.120 
.125 
.125 
.126 
.143 
.125 
.147 
.154 
.125 
.150 
.150 
.130 
.150 
.158 
.150 
.168 
.153 
.150 
.150 
.152 
.150 
.140 
.153 
.144 
.152 
.154 
.150 
.153 
.155 
.155 
.153 



.170 
.173 
.172 



.180 
.180 
.165 



.193 
.180 
.193 
.166 
.180 
.160 
.150 
.190 
.180 
.188 
.163 
.183 
.158 
.164 
.230 
.208 
.178 
.218 
.180 
.195 
.228 



Pork 
chops, 

per 
pound. 



.125 



.125 



.125 



.125 



.150 



.150 



.150 



.144 
.140 
.143 
.141 
.141 
.146 
.157 
.162 
.164 
.160 
.163 
.160 
.160 
.150 
.168 
.160 
.160 
.162 
.187 
.200 
.180 
.185 
.228 
.213 
.187 
.182 
.197 
.220 
.169 
.190 
.168 
.192 
.165 
.173 
.186 
.190 
.199 
.205 
.178 
.197 
.210 
.203 



Ham, 
smoked 

per 
pound. 



'SO. 135 
1.133 
1.135 
1.130 
1.140 
1.133 
1.130 
1.142 
1.136 
1.134 
1.150 
1.133 
1.129 
1.139 
1.128 
1.135 
1.133 
1.146 
1.142 
1.145 
1.152 
1.153 
1.143 
1.151 
1.164 
1.143 
1.170 
1.180 
1.150 
2.200 
1.160 
2.200 
2.228 
1.158 
2.200 
2.250 
1.172 
2.225 
2.232 
2.250 



2.275 
2.250 



2.300 
2.258 



2.300 
2.250 
1.170 
1.197 
2.250 
1.180 



2.300 
2.250 
1.156 
1.178 
2.240 
1.175 



2. 300 
2.250 
1.165 
1.173 
2.249 
1.200 
2.300 



Lard, 

pure, 

per 

pound. 



.100 
.125 
.100 
.100 
.120 
.100 
.100 
.103 
.100 
.090 
.094 
.100 
.085 
.100 
.100 
.088 
.100 
.105 
.099 
.104 
.122 
.122 
.123 
.138 
.137 
.142 
.138 
.130 
.145 
.130 
.124 
.130 
.122 
.120 
.126 
.129 
.126 
.128 
.130 
.133 
.137 



.138 
.135 
.135 



.160 
,148 
.147 



.180 
.173 
.187 
,150 
.178 
,168 



,133 
,125 
,130 
,132 
,137 
,131 



.143 
,138 
,139 
,134 
,135 
,148 
,144 



Flour, 
wheat, 
per one- 
eighth 
barrel 



.821 
.933 

.784 
.755 
.742 
.870 
.762 
.801 
.909 
.867 
.870 
.941 
.904 
.916 
.755 
.808 
.821 
.760 
.801 
.826 
.750 
.767 
.801 
.750 
.750 
.796 
.750 
.767 
.801 



.950 
.956 



.900 
.903 



.850 



.933 
.900 
.900 



1.000 
.983 



.950 
1.000 
1.000 

.900 
1.000 
1.000 



.929 
.908 
.933 
.900 
1.000 



.942 
.950 
.913 
.929 
1.000 
1.000 



Pota^ 
toes, 
Irish, 
per 
peck. 



.300 
.279 
.263 
.238 
.283 
.254 
.219 
.250 
.258 
.250 
.246 
.246 
.275 
.313 
.250 
.267 
.279 
.258 
.279 
.267 
.267 
.300 
.308 
.279 
.283 
.321 
.246 
.300 
.325 
.271 
.333 
.300 
.250 
.281 
.269 
.278 
.300 
.279 
.250 
.258 
.265 



.250 
.267 
.258 



.275 
.267 
.292 



.217 
.232 
.242 
.242 
.250 
.292 
.250 
.308 
.350 
.288 
.383 
.307 
.342 
.346 
.329 
.313 
.308 
.342 
.342 
.342 



Eggs, 

per 

dozen. 



$0. 225 
.233 
.208 
.208 
.228 
.205 
.208 
.195 
.203 
.207 
.179 
.205 
.218 
.199 
.214 
.236 
.202 
.228 
.219 
.215 
.243 
.235 
.244 
.274 
.266 
.259 
.274 
.252 
.255 
.288 
.271 
.276 
.274 
.263 
.276 
.286 
.280 
.287 
.288 
.257 
.277 



.258 
.270 



.318 
.287 
.300 



.328 
.310 
.292 
.300 



.268 
.261 
.275 
.291 



.312 
.307 
.303 
.319 
.334 



Butter, 
cream- 
ery, per 
pound. 



$0. 302 
.338 
.313 
.316 
.317 
.304 
.298 
.313 
.294 
.283 
.303 
.282 
.273 
.300 
.313 
.282 
.321 
.321 
.288 
.321 
.313 
.297 
.321 
.329 
.318 
.333 
.317 
.324 
.325 
.313 
.321 
.338 
.323 
.323 
.333 
.330 
.336 
.332 
.363 
.333 
.350 



.347 
.315 
.355 



.373 
.330 
.370 



.393 
.348 
.382 
.375 
.375 
.385 
.313 
.354 
.346 
.347 
.350 
.344 
.337 
.355 
.396 
.377 
.380 
.387 
.381 
.390 



Sugar, 
granu- 
lated, 
per 
pound. 



1.052 
.050 
.053 
.048 
.050 
.053 
.051 
.055 
.053 
.050 
.053 
.057 
.056 
.058 
.056 
.056 
.060 
.057 
.^58 
.063 
.058 
.058 
.060 
.050 
.050 
.055 
.053 
.054 
.055 
.053 
.052 
.055 
.061 
.059 
.063 
.054 
.050 
.053 
.054 
.057 
.055 



.056 
.058 
.058 



.053 
.055 
.055 



.055 
.057 
.057 
.057 
.059 
.055 



.061 
.060 
.060 
.059 
.061 
.061 



.060 

.058 
.058 
.063 
.060 
.060 



1 Whole. 



2 Sliced. 



MINIMUM WAGE. BILL. 



Average retail prices of certain specified articles of food in Washington, D. C.,in each year 
from 1890 to 1915, inclusive, by firms — Continued. 





Round 


Pork 


Ham, 


Lard. 


Flour, 
wheat. 


Pota- 
toes, 
Irish, 
per 
peck. 


Eggs, 

per 

dozen. 


Butter, 


Sugar, 


Year. 


steak, 
per 


chops, 

per 


smoked, 
per 


pure, 
per 


per one- 
eighth 


cream- 
ery, per 


lated, 




pound. 


pound. 


pound. 


pound. 


barrel 
bag. 


pound. 


pound. 


1913 


SO. 258 


10. 208 


1 SO. 300 


$0. 152 


SO. 896 


•SO. 246 


$0. 309 


$0,417 


$0. 051 




.231 


.210 


2.264 


.144 


.950 


.233 


.308 


.405 


.051 




.213 


.213 


2.195 


.148 


.896 


.259 


.296 


.391 


.049 




.244 


.227 


2.201 


.142 


.815 


.261 


.318 


.408 


.052 




.212 


.218 


1.295 


.148 


1.000 


.300 


.293 


.398 


.050 




.222 


.224 


2.214 


.155 


.975 


.280 


.343 


.404 


.052 




.253 


.228 


1.313 


.150 


.900 


.290 


.297 


.411 


.051 




.234 
.268 


.205 
.216 


1.297 
1.300 


.148 
.141 


""."950' 


.288 
.282 








1914 


.333 


.395 


.056 




.254 


.233 


1.270 


.139 


.967 


.275 


.317 


.383 


.054 




.236 


.233 


2.191 


.145 


.933 


.280 


.338 


.378 


.055 




.258 


.218 


2.193 


.140 


.908 


.282 


.333 


.383 


.058 




.242 


.227 


1.301 


.142 


.958 


.291 


.319 


.375 


.057 




.237 


.224 


2.210 


.149 


1.033 


.297 


.354 


.383 


.056 




.273 


.241 


1.323 


.150 


- .958 


.320 


.334 


.385 


.056 




.230 
.253 


.218 
.203 


1.300 
1.300 


.146 
.131 


i.675 


.296 
.218 








1915. 


.315 


.393 


.063 




.247 


.213 


1.272 


.128 


1.125 


.189 


.308 


.378 


.060 




.227 


.212 


2.183 


.129 


1.050 


.225 


.321 


.383 


.060 




.247 


.195 


2.187 


.128 


1.088 


.214 


.317 


.383 


.063 




.240 


.211 


1.300 


.135 


1.092 


.205 


.291 


.374 


.060 




.223 


.198 


2.191 


.124 


1.144 


.217 


.364 


.376 


.062 




.275 


.221 


1.350 


.138 




.263 

















1 Sliced. 



2 Whole. 



Highest and lowest average retail prices of certain specified articles of food, Washington, 
D. C, in 5-year intervals, from 1890 to 1915. 



Year. 


Round 

steak, 

per 
pound. 


Pork 
chops, 

per 
pound. 


Hani, 
smo' ed, 

per 
pound. 


Lard, 

pure, 

per 

pound. 


Flour, 
wheat, 
per one- 
eighth 
barrel 
bag. 


Pota- 
toes, 
Irish, 
per 
peck. 


Eggs, 

per 

dozen. 


Butter, 
cream- 
ery, per 
pound. 


Sugar, 
granu- 
lated, 
per 
pound. 


1890 


$0. 124 
.133 
.116 
.125 
.125 
.154 
.144 
.153 
.150 
.193 
.223 
.275 


$0. 100 

"".'i25' 

""'.'125' 

"'.'i4i' 
.146 
.182 
.228 
.195 
.221 


$0. 134 
.138 
.130 
.140 
.142 
.146 
.158 

".'i76' 

.197 
.183 
.191 


$0. 100 
.110 
.100 
.120 
.099 
.105 
.120 
.126 
.150 
.187 
.124 
.138 


$0. 843 
1.000 
.742 
.784 
.760 
.826 
.950 
.968 
.900 
LOOO 
1.050 
L144 


$0,254 
.296 
.238 
.283 
.258 
.279 
.250 
.281 
.217 
.292 
.189 
.263 


$0,220 
.240 
.208 
.228 
.215 
.228 
.263 
.276 
.292 
.328 
.291 
.364 


$0. 295 
.338 
.313 
.317 
.288 
.321 
.323 
.333 
.313 
.393 
.374 
.393 


$0. 055 


1895 


.074 
.048 


1900 


.053 
.057 


1905 


.063 
.059 


1910 


.063 
.055 


1915 


.059 
.060 




.063 



Mr. Nolan. That small table refers to commodities that are more likely to be used 
by the lower-paid employees in the District of Columbia? 

Mr. Stewart. Yes, sir. For instance, instead of taking sirloin steak, I have taken 
round steak; instead of taking a fancy roast Cut, we have taken the cheapest steak 
that we can buy; and we have taken pork chops, and so on. Vegetables, of course, are 
bought by everyone at practically the same price. 

I believe that, so far as the cost of living is concerned, these are all the official 
figures that I can furnish you at this time. I know that rents are increasing very 
rapidly in the District of Columbia. For a number of years they were quite high 
and then there was a slump, but certainly at the present time they have recovered 
from that slump and are very much on the up grade. 

Mr. Nolan. Are they higher to-day than ever before in the District of Columbia? 

Mr. Stewart. My impression is that they are, but there was a boom time here when 
they were very high. Most of my official connection with the bureau has been as a 
field man. My family was not in Washington, so that I am not the best authority on 



8 MINIMUM WAGE BILL. 

that subject; but my impression is that the rents are now very much in advance of 
the boom time that they had here several years ago. 

Mr. London. I think the committee would be greatly aided by having references 
to the ori<jinal sources from which this data may be obtained and made a part of the 
record. We will be called upon on the floor of the House to sustain this data, and it 
will be desirable to have access to the original sources from which this data relating to 
the cost of living has been obtained. 

Mr. Stewart. I will have to say this, Mr. Chairman, that the Bureau of Labor 
Statistics, in securing its information from firms, obtains that under pledge that it 
will be treated purely as confidential, so far as the source of information is concerned. 

Mr. Nolan. You mean so far as the names are concerned? 

Mr. Stewart. Yes, sir. 

Mr. Nolan. That is understood. 

Mr. Stewart. This information comes from three firms in 1890. That is all we 
had at that time. Those are all the firms we took at that time. The 1915 figures are 
from seven stores. 

Mr. London. Including the original three? 

Mr. Stewart. I think they do include the original three. 

Mr. London. I am very much interested in tracing the cost of living and in getting 
the original sources, not only in connection with this particular bill, but along other 
lines. Can you help us in this matter? What sources would you look to for this 
information? 

Mr. Stewart. The Bureau of Labor Statistics instructed its agents in selecting 
these firms to take neither the fancy store nor the cutrate store — the store that cuts and 
slashes prices. You never know at what pi'ice they are going to sell a thing. They 
sell it at one price one day and another the next. The agents were instructed to 
take the substantial stores of medium grade, where the ordinary skilled working 
people trade. 

Mr. Nolan. I presume, Mr. Stewart, that the retail prices are fixed according to 
market prices? 

Mr. Stewart. Yes, sir; presumably. In other words, we would not take a store 
that runs as a leader a thing Uke granulated sugar, for instance, and undertook to cut 
the price of sugar, because the next day they would not have the same price, and 
our figures would be entirely thrown out of plumb by these freak figures. 

Mr. Nolan. The figures you have given here relate to the District of Columbia 
exclusively? 

Mr. Stewart. Yes, sir. 

Mr. Nolan. You have had a great deal of experience in collecting statistics on the 
cost of living throughout the country? 

Mr. Stewart. Yes, sir. 

Mr. Nolan. How do the figures in Washington, regarding the rise in prices, com- 
pare with the country generally? Has the same percentage of increase been observed 
generally throughout the country? 

Mr. Stewart. I would much prefer, if you will permit me, to submit as a part of 
my statement the exact figures on that. I can give you the increases, taking the 
country as a whole. 

Mr. Nolan. I wish you would do that. 

Mr. Stewart. My impression is that Washington is going up rather faster than 
most of the cities, but there are probably some cities that are going up as fast as or 
faster than Washington, so far as the country as a whole is concerned. I would prefer 
to submit the exact figures. 

Mr. Nolan. I wish you would, and we will incorporate them in your testimony 
for the benefit of the committee and the House. 

United States Department of Labor, 

Bureau op Labor Statistics, 

Washington, April 5, 1916. 
Hon. John I. Nolan, 

House of Representatives, Washington, D. C. 
Dear Mr. Nolan: During my testimony before the House Committee on Labor 
on your bill to establish a minimum wage for Government employees and to increase 
the salaries of employees I submitted the retail price in Washington of a number 
of articles for a series of years. Dining that testimony you asked me for similar figures 
for the country as a whole. It is, of course, impossible to give you the same detail 
as was given for Washington in a reasonable space. I therefore constructed tables 
for the items covered in my testimony to show, for instaince, the number of pounds 
of round steak that $1 would buy by the five general divisions of the United States 



MINIMUM WAGE BILL. 9 

and for the United States as a whole. On separate sheets I have shown the same facts 
for pork chops, smoked ham, lard, one-eighth barrel sacks of wheat flour, a dozen eggs, 
pounds of butter, pecks of Irish potatoes, and sugar by the pound. 

I should say, in explanation, that the Bureau of Labor Statistics secures prices 
from 45 cities in 34 different States at the present time. While this will, perhaps, 
not hold good on each article back to 1890, yet a fairly representative number of cities 
were taken throughout the period. The 45 cities for which prices are being secured 
9,t this time have been grouped into five geographical divisions, as follows: 

North Atlantic division: Boston, Mass.; Buffalo, N. Y.; Fall River, Mass.; Man- 
chester, N. H.; Newark, N. J.; New Haven, Conn.; New York, N. Y.; Philadelphia, 
Pa.; Pittsburgh, Pa.; Providence, R. I.; Schenectady, N. Y.; Scranton, Pa. 

South Atlantic division: Atlanta, Ga.; Baltimore, Md.; Charleston, S. C; Charles- 
ton, W. Va.; Jacksonville, Fla.; Richmond, Va.; Washington, D. C. 

North Central division: Chicago, 111.; Cincinnati, Ohio; Cleveland, Ohio; Detroit, 
Mich.; Indianapolis, Ind.; Kansas City, Mo.; Milwaukee, Wis.; Minneapolis, Minn.; 
Omaha, Nebr.; St. Louis, Mo.; St. Paul, Minn.; Springfield, 111. 

South Central division: Birmingham, Ala.; Dallas, Tex.; El Paso, Tex.; Little 
Rock, Ark.; Louisville, Ky.; Memphis, Tenn.; New Orleans, La. 

Western division: ButteJMont.; Denver, Colo.; Los Angeles, Cal.; Portland, Oreg.; 
Salt Lake City, Utah; San Francisco, Cal.; Seattle, Wash. 

Trusting that this will give your committee the information you requested, I am, 
Very truly, yours, 

Ethelbert Stewart, Chief Statistician. 

Quantities of various commodities that could be bought at retail for §1, 1890-1915. 
ROUND STEAK (POUND). 



Year. 


North 
Atlantic. 


South 
Atlantic. 


North 
Central. 


South 
Central. 


Western. 


United 
States, 


1890 


6.5 
6.5 
6.5 
6.5 
6.6 
6.5 
6.5 
6.5 
6.4 
6.3 
6.2 
5.9 
5.5 
5.8 
5.7 
5.8 
5.7 
5.4 
5.3 
5.3 
5.1 
5.1 
4.5 
4.0 
3.7 
3.7 


8.6 
8.5 
8.7 
8.7 
8.7 
8.5 
8.6 
8.6 
8.3 
8.0 
7.7 
7.5 
7.2 
7.5 
7.5 
7.5 
7.1 
6.9 
6.5 
6.2 
5.8 
5.8 
5.2 
4.8 
4.5 
4.7 


9.3 
9.3 
9.3 
9.1 
9.3 
9.2 
9.2 
9.1 
8.9 
8.8 
8.5 
8.1 
7.7 
7.9 
7.9 
7.9 
7.6 
7.3 
6.4 
6.6 
6.1 
6.1 
5.3 
4.7 
4.4 
4.6 


8.9 
8.8 
8.9 
8.7 
8.6 
8.7 
8.5 
8.5 
8.3 
8.1 
7.8 
7.7 
7.0 
7.7 
7.8 
7.6 
7.5 
7.4 
6.8 
6.4 
6.3 
6.2 
5.6 
5.0 
4.8 
4.8 


8.4 
8.4 
8.5 
9.0 
9.4 
8.9 
8.8 
8.6 
8.4 
8.1 
8.1 
7.8 
7.5 
7.7 
7.6 
7.7 
7.6 
7.5 
7.2 
6.9 
6.4 
6.1 
5.2 
5.0 
4.9 
4.9 


8.1 


1891 


8.1 


1892 


8.1 


1893 


8.1 


1894 - 


8.2 


1895 


8.1 


1896 


8.1 


1897 


8.0 


1898 


7.9 


1899 


7.8 


1900 


7.6 


1901 


7.2 


1902 


6.8 


1903 .... . . 


7.1 


1904 


7.1 


1905 


7.1 


1906 


6.9 


1907 


6.7 


1908 


6.4 


1909 


6.2 


1910 


5.8 


1911 


5.8 


1912 


5.1 


1913 


4.5 


1914 


4.3 


1915 


4.4 







PORK CHOPS (POUNDS). 



1890 


9.3 
9.1 
9.0 
8.3 

8.8 
9.2 
9.4 
9.4 
9.3 
9.1 
8.5 
7.7 
7.1 
7.1 
7.2 


10.0 
9.6 
9.5 
8.9 
9.3 
9.2 
9.3 
9.6 
9.3 
9.1 
8.7 
7.9 
7.0 
7.2 
7.4 


10.6 
10.5 
10.2 
9.7 
13.2 
10.3 
10.4 
10.3 
10.1 
9.8 
9.3 
8.5 
7.9 
8.1 
8.3 


8.7 
8.7 
8.7 
8.2 
8.4 
8.5 
8.5 
8.5 
8.6 
8.3 
8.1 
7.4 
6.7 
6.9 
7.2 


8.5 
8.5 
8.4 
8.7 
8.7 
8.4 
8.5 
8.5 
8.8 
8.2 
7.9 
7.7 
7.2 
7.4 
7.4 


9.3 


1891 


9.2 


1892 


9.0 


1893 


8.5 


1894 


8.9 


1895 


9.1 


1896 


9.3 


1897 


9.3 


1898 


9.2 


1899 


8.9 


1900 


• 8.4 


1901 


7.7 


1902 


7.1 


1903 


7.1 


1904 


7.3 



10 



MINIMUM WAGE BILL. 



Quantities of various commodities that could be bought at retail for §1, 1890-1915 — 

Continued. 

PORK CHOPS (POUNDS)— Continued. 



Year. 


North 
Atlantic. 


South 
Atlantic. 


North 
Central. 


South 
Central. 


Western. 


United 

States. 


1905 


7.1 

6.6 
6.3 
6.3 
5.8 
5.3 
5.6 
5.1 
4.6 
4.4 
4.8 


7.2 
6.6 
6.4 
6.3 
5.6 
5.1 
5.6 
5.2 
4.7 
4.5 
4.9 


8.1 
7.4 
7.2 
6.9 
6.3 
5.7 
6.1 
5.6 
5.1 
4.9 
5.3 


7.2 
6.6 
6.5 
6.3 
5.7 
5.2 
5.3 
5.1 
4.8 
4.5 
4.8 


7.0 
6.6 
6.2 
6.1 
5.7 
5.0 
5.0 
4.9 
4.5 
1.3 
4.6 


7 2 


1906 


6 6 


1907 


6.4 
6 2 


1908 


1909 


5 7 


1910 


5 2 


1911 


5 6 


1912 


5 2 


1913 


4 7 


1914 


4 5 


1915 


4 9 







SMOKED HAM (POUNDS). 



1890 
1891 
1892 
1893 
1894 
1895 
1896 
1897 
1898 
1899 
1900 
1901 
1902 
1903 
1904 
1905 
1906 
1907, 
1908 
1909 
1910 
1911 
1912 
1913 
1914 
1915 



6.4 
6.5 
6.3 
5.7 
6.2 
6.5 
6.5 
6.5 
6.7 
6.4 
6.0 
5.7 
5.3 
5.2 
5.3 
5.4 
5.0 
4.9 
4.8 
4.7 
4.3 
4.3 
4.2 
3.8 
3.7 
3.9 



6.7 
6.6 
6.5 
6.3 
6.5 
6.6 
6.6 
6.6 
6.7 
6.6 
6.4 
6.1 
5.7 
6.6 
5.7 
5.7 
5.3 
5.0 
5.0 
4.6 
4.0 
4.3 
4.3 
4.0 
3.9 
4.1 



6.8 
6.7 
6.5 
6.0 
6.6 
6.S 
6.8 
6.8 
7.1 
6.8 
6.3 
6.0 
5.5 
5.5 
5.6 
5.6 
5.2 
5.2 
5.0 
4.7 
4.3 
4.4 
4.3 
3.8 
3.8 
3.9 



7.0 
6.8 
■6.6 
6.5 
6.6 
6.8 
7.0 
6.8 
6.8 
6.7 
6.3 
6.1 
0.5 
5.3 
5.3 
5.3 
5.0 
4.8 
4.7 
4.3 
3.8 
3.8 
3.8 
3.5 
3.4 
3.6 



5.7 
5.6 
5.6 
5.2 
5.7 
6.1 
6.2 
6.2 
6.5 
6.1 
5.7 
5.6 
5.1 
5.1 
5.1 
5.1 
4.9 
4.6 
4.4 
4.2 
3.8 
3.8 
3.8 
3.5 
3.4 
3.5 



6.5 
6.4 
6.0 
6.4 
6.6 
6.7 
6.6 
6.8 
6.5 
6.2 
5.9 
5.4 
5.3 
5.5 
5.5 
5.1 
5.0 
4.8 
4.6 
4.1 
4.2 
4.2 
3.8 
3.7 
3.9 



LARD (POUNDS). 



1890 


10.4 

10.2 

9.7 

8.4 

9.4 

10.1 

11.1 

11.6 

11.0 

10.8 

9.9 

8.7 

7.6 

8.0 

8.6 

8.7 

7.9 

7.6 

7.6 

6.8 

5.8 

7.2 

6.9 

6.5 

6.5 

7.0 


11.8 

11.6 

11.2 

9.7 

10.9 

11.9 

12.2 

12.7 

12.0 

11.6 

10.6 

9.3 

8.2 

8.5 

9.5 

9.6 

8.6 

8.0 

7.9 

6.9 

6.1 

7.4 

7.0 

6.6 

6.6 

6.9 


10.9 

10.8 

10.5 

9.5 

10.2 

10.6 

11.4 

11.5 

11.1 

10.6 

10.1 

9.0 

8.0 

8.6 

9.4 

9.4 

8.5 

8.1 

8.0 

7.0 

6.0 

7.1 

6.7 

6.3 

6.5 

6.8 


11.0 

10.8 

10.4 

9.2 

10.1 

11.5 

12.3 

12.7 

12.2 

11.5 

10.9 

9.3 

8.0 

9.0 

9.5 

9.5 

8.8 

8.4 

8.2 

7.2 

6.3 

7.3 

6.8 

6.5 

6.5 

6.8 


9.1 

8.8 
8.4 
7.7 
8.3 
8.8 
9.9 
10.2 
9.7 
9.6 
9.1 
8.3 
7.5 
7.6 
7.8 
7.8 
7.3 
7.0 
7.0 
6.4 
5.7 
6.6 
6.2 
5.7 
5.9 
6.1 


10.8 


1891 


10.6 


1892 


10.2 


1893 


8.9 


1894 


9.9 


1895 


10.5 


1896 


11.4 


1897 


11.8 


1898 


11.2 


1899 


10.9 


1900 


10.1 


1901 


8.9 


1902 


7.9 


1903 


8.3 


1904 


9.0 


1905 


9.1 


1906 


8.3 


1907 


7.9 


1908 


7.9 


1909 


7.0 


1910.. 


6.1 


1911 


7.1 


1912 


6.8 


1913 


6.3 


1914 


6.4 


1915 


6.8 







MINIMUM WAGE BILL. 



11 



QuantUies of various commodities that^^^^dje^ bought at retail for $1, 1890-1915^ 



WHEAT FLOUR (J-BARREL SACKS.) 




1890.. 
1891.. 
1892.. 
1893.- 
1894. . 
1895.. 
1896.. 
1897. . 
1898.- 
1899.- 
1900.- 
1901.- 
1902. . 
1903.. 
1904.. 
1905.. 
1906. . 
1907. 

1908. 

1909. 

1910. 

1911. 

1912. 

1913. 

1914. 

1915. 



EGGS (DOZEN). 



4.1 

3.9 

3.9 

3.8 

4.3 

4.1 

4.4 

4.5 

4.2 

4.0 

4.1 

3.9 

3.4 

3.3 

3.1 

3.1 

3.0 

3.0 

2.9 

2.7 

2.7 

2.7 

2.6 

2.6 

2.5 

2.6 



5.9 

5.f7 

5.6 

5.6 

6.1 

6.0 

6.3 

6.4 

6.3 

6.0 

5.9 

5.6 

5.0 

4.7 

4.4 

4.3 

4.2 

4.2 

4.2 

3.8 

3.1 

3.3 

3.0 

3.1 

3.0 

3.2 



5.3 

5.0 

5.0 

4.9 

5.5 

5.3 

5.8 

6.0 

5.7 

5.4 

5.4 

5.1 

4.5 

4.3 

4.1 

4.1 

4.2 

4.1 

,3.9 

3.6 

3.4 

3.8 

3.5 

3.5 

3.3 

3.4 



6.2 

5.8 

6.0 

6.0 

6.4 

6.1 

6.5 

6.5 

6.2 

6.0 

6.1 

5.5 

5.0 

4.6 

4.7 

4.6 

4.4 

4.2 

3.9 

3.6 

3.6 

3.7 

3.4 

3.2 

3.2 

3.3 



BUTTER (POUNDS). 



1890. 
1891. 
1892. 
1893. 
1894. 
1895. 
1896. 
1897 
1898 
1899 
1900 
1901 
1902 
1903 



3.7 
3.5 
3.4 
3.4 
3.7 
3.8 
4.0 
4.0 
3.9 
3.8 
3.6 
3.6 
3.3 
3.4 I 



3 S 


4.8 


3,7 


4.5 


3.8 


4.5 


3 9 


4.5 


4 2 


5.0 


4,2 


4.9 


4 6 


5.3 


4,4 


5.3 


4,4 


4.0 


4 2 


4.8 


4 4 


4.8 


4 2 


4.6 


3 7 


4.0 


3 5 


3.9 


3 4 


3.7 


3 3 


3.7 


3 2 


3.6 


3 


3.5 


2 9 


3.4 


2 8 


3.2 


? 6 


3.0 


2,7 


3.1 


2 7 


3.0 


♦^ 7 


3.0 


2 fi 


2.9 


2.8 


3.0 



3.8 
3 7 


4.4 


3.7 


3.4 




4.0 


3.6 


3.0 




3 6 


4.0 


3.6 


3.1 




3.5 
3.7 


3.8 
4.1 


3.6 

3.7 


3.3 
3.4 




3 8 


4.4 


3.8 


3.7 




3.9 
3 9 


4.7 
4.6 


3.9 
4.0 


3.8 
4.0 




3.9 
3 8 


4.5 


4.0 


3.7 




4.4 


.3.9 


3.7 




3.8 


4.1 


4.0 


3.7 




3.7 
3.5 
3.5 


4.0 
3.8 


3.7 
3.4 


3.4 




3.8 


3.4 


3.3 





3.9 
3.6 
3.6 
3.5 
3.8 
4.0 
4.2 
4.2 
4.1 
4.0 
3.8 
3.8 
3.5 
3.5 



12 



MINIMUM WAGE BILL. 



Quantities of various commodities that could be bought at retail for §1, 1890-1915- 

Continued. 

BUTTER (POUNDS)— Continued. 



IRISH POTATOES (PFXK)., 



Year. 


North 
Atlantic. 


South 
Atlantic. 


North 
Central. 


South 
Central. 


Western. 


United 

States. 


1904 


3.4 
3.3 
3.1 
2.9 
3.0 
2.8 
2.7 
2.9 
2.6 
2.5 
2.6 
2.7 


3.5 
3.4 
3.3 
3.0 
3.0 
2.9 
2.S 
2.9 
2.6 
2.5 
2.7 
2.7 


3.8 
3.7 
3.5 
3.3 
3.2 
3.1 
2.9 
3.1 
2.8 
2.8 
2.9 
2.9 


3.4 
3.3 
3.2 
2.9 
2.9 
2.6 
2.8 
2.9 
2.6 
2.6 
2.7 
2.8 


3.4 
3.2 
3.1 
2.7 
2.7 
2.6 
2.5 
2.6 
2.5 
2.5 
2.7 
2.8 


3.6 


1905 


3.4 


1906 


3.3 


1907 . 


3.0 


1908 


3.0 


1909 


2.9 


1910 


2.7 


1911 


2.9 


1912 


2.6 


1913 


2.6 


1914 


2.7 


1915 


2.8 







1890 


4.4 
4.2 
5.0 
4.3 
4.8 
5.3 
6.1 
5.0 
- 4.5 
5.0 
5.1 
4.2 
4.2 
4.2 
4.0 
4.5 
4.3 
4.2 
3.8 
3.8 
4.4 
3.6 
3.1 
3.9 
3.7 
4.5 


3.5 
3.3 
3.9 
3.3 
3.6 
3.9 
4.7 
3.9 
3.4 
3.7 
3.8 
3.2 
3.2 
3.4 
3.'2 
3.5 
3.4 
3.2 
3.2 
3.2 
3.4 
2.6 
2.5 
3.2 
3.0 
3.9 


4.2 
3.7 
4.8 
3.9 
4.2 
4.9 
6.6 
5.3 
4.4 
5.1 
5.1 
3.7 
3.7 
3.8 
3.7- 
4.0 
3.9 
3.8 
3.4 
3.4 
3.9 
2.9 
2.9 
4.1 
3.8 
5.1 


3.9 
3.5 
4.7 
3.7 
4.1 
4.5 
5.2 
4.3 
4.0 
4.2 
4.4 
3.6 
3.9 
3.7 
3.6 
3.8 
3.7 
3.4 
3.2 
3.3 
3.5 
2.7 
2.7 
3.4 
3.0 
3.6 


3.6 
4.0 
4.6 
4.1 
4.9 
5.2 
5.1 
5.1 
4.8 
3.6 
4.4 
3.8 
3.7 
4.1 
3.5 
4.0 
3.7 
3.3 
3.7 
3.2 
3.5 
2.7 
3.4 
4.8 
4.2 
4.1 


4.0 


1891 


3.8 


1892 


4.6 


1893 


3.9 


1894 


4.3 


1895 


4.8 


1896 


5.7 


1897 


4.7 


1898 


4.2 


1899 


4.6 


1900. .A 


4.7 


1901 

1902 


3.8 
3.8 


1903 


3.8 


1904 

1905 


3.6 
4.0 


1906 


3.9 


1907 


3.7 


1908 


3.5 


1909 


3.5 


1910 


3.8 


1911 


3.0 


1912 


2.9 


1913 


3.9 


1914 


3.6 


1915 


4.4 







GRANULATED SUGAR (POUNDS). 



1890. 
1891. 
1892. 
1893. 
1894. 
1895. 
1896. 
1897. 
1898, 
1899, 
1900, 
1901, 
1902, 
1903, 
1904, 
1905 
1906 
1907 
1908 
1909 
1910 
1911 
1912 
1913 
1914 
1915 



14.9 
17.5 
18.9 
17.5 
19.2 
19.6 
18.2 
18.5 
17.2 
17.5 
16.7 
16.9 
18.5 
18.2 
17.5 
16.7 
17.9 
17.5 
17.5 
17.5 
16.9 
15.6 
16.1 
18.5 
17.5 
15.6 



14.9 
16.9 
17.5 
16.7 
17.9 
18.9 
IS. 5 
18.9 
17.5 
17.2 
16.4 
16.7 
17.9 
17.9 
17.5 
16.7 
17.9 
17.5 
17.2 
17.5 
17.2 
15.9 
15.9 
18.9 
17.2 
15.6 



14.9 
16.9 
18.2 
17.2 
18.5 
18.9 
17.9 
18.2 
17.2 
16.9 
16.7 
16.9 
18.2 
18.2 
16.9 
16.9 
18.2 
17.9 
17.5 
17.5 
16.9 
15.6 
16.1 
18.2 
16.9 
15.2 



13.5 
15.4 
16.4 
16.4 
16.9 
17.5 
16.9 
17.2 
16.9 
16.9 
16.7 
17.2 
17.9 
17.9 
16.4 
16.4 
17.2 
16.9 
16.7 
16.9 
16.7 
15.4 
15.9 
18.2 
16.9 
15.2 



12.5 


14.5 


14.1 


16.7 


15.4 


17.9 


14.9 


16.9 


15.9 


18.2 


16.9 


18.9 


16.9 


17.9 


16.7 


17.9 


15.4 


16.9 


16.1 


16.9 


15.9 


16.4 


15.9 


16.7 


18.9 


17.9 


16.9 


17.9 


15.2 


16.9 


15.4 


16.7 


16.1 


17.5 


15.9 


17.2 


15.4 


16.9 


15.6 


16.9 


15.2 


16.7 


15.2 


16.4 


14.9 


15.9 


16.9 


18.2 


15.9 


16.9 


14.3 


15.2 



MINIMUM WAGE BILL. 13 

Mr. Nolan. You have not touched upon the minimum-wage section, Mr. Stewart. 
Would you like to say anything in regard to the question of a minimum wage of $3^ 
per day for those employees who now receive low salaries? 

Mr. Stewart. I would not want to attempt to raise a family in the District of 
Columbia, or anywhere else, on less than that. I certainly do not want to ask a man 
to do what I would not dare to tackle myself. It is unfair to ask these men to work 
for $660 a year. That is the lowest salary we pay, but, of course, there are bureaus 
that pay less than that amount. As I said before, we can not increase the salaries of 
those men who receive $660 per annum. The only method that I know of by which 
they can be increased is the passage of a flat minimum-wage law, or some other act 
of Congress. 

Mr. Nolan. The fact of the matter is that a great many of these men are paid out 
of a lump-sum appropriation and the limitations of the executive departments regard- 
ing himp-sum appropriations proliibit them from raising salaries, in case they desire 
to do so. 

Mr. Stewart. Not so much, Mr. Chaii-man, if they are paid out of a lump-sum 
appropriation as if their salaries are fixed in the bill on the statutory roll. 

Mr. Nolan. What I had reference to is this: You are prohibited, where there is a 
salary provided on the statutory roll, from raising a man's salary; and then, in any 
other department where the lump-sum appropriation applies, you can not raise 
them. In other words, you are blocked at every turn. The only way you can get 
relief is through legislation of this character. 

Mr. Stewart. That is quite true. I think $3 a day is little enough for any man in 
the District of Columbia to work for. 

Mr. Nolan. What have you to say in that regard as to the whole service? 

Mr. Stewart. So far as I know it would apply to anyone in the service. Of course 
this bill will affect more people in the District than anywhere else. That is why I 
brought down the figures of cost for Washington. It seemed to me that it affected 
more people here than elsewhere. Of course, the laborers in the navy yards and 
arsenals are intended to be covered by this, I suppose. 

Mr. Nolan. Yes. They have also been entirely overlooked by the Navy Depart- 
ment and the War Department, as has been testified to here by a man who has been 
23 years in the Brooklyn Navy Yard. 

Mr. Stewart. I think the Eock Island Arsenal, at Rock Island, 111., when the 
eight-hour day went into effect was paying some of the men less than $1 a day. I 
think there have been some increases since, but nothing that would come anywhere 
near touching this minimum. 

Mr. Nolan. I want to say that the committee is very grateful to you for the time 
you have given it, because you have given us some information that we have been 
seeking ever since the hearing started. I am sure it will prove of value not alone to 
the subcommittee but to the committee as a whole. We hope it will have some effect 
on the Members of the House. 

Mr. Stewart. I thank you, Mr. Chairman. I am only too glad to be helpful in 
any way. 

With the foregoing facts before us regarding the tremendous 
advance in prices of the bare necessaries of life as they affect the 
poorer-paid employees of the Government, and the further fact that 
the annual appropriations of the Government of the United States 
have increased from $457,088,344.72 in 1896 to $1,114,937,012.02 in 
1916, due largely to the fact that all of the great executive depart- 
ments have from year to year been called upon to meet increasing 
prices for materials of all kinds necessary in the conduct of the Gov- 
ernment's business, and this is particularly true of the Army and 
the Navy, where millions of dollars are spent annually for rations, 
and the Government has met this increase without complaint, but 
in all this time no attention has been given in a legislative way, and 
very little in an administrative way, to the wants and needs of the 
human element involved in the conduct of this great Government 
machine. The workers, and particularly those receiving the lowest 
salaries, have been almost entirely overlooked. Particular atten- 
tion is called to the fact that thousands and thousands of these 
employees are working to-day at salaries that were established in 



,14 MINIMUM WAGE BILL. 

1854, and this has been largely the basis for fixing and determining 
the salaries of employees in similar employment since that date. 

Members of Congress and others may argue against this measure 
because it involves millions of doUars of increased expenditures. It 
has been estimated by Mr. H. M. McLarin, president of the Federal 
Employees Union, that the increased expenditures if this bill passes 
wiU amount to $3,812,000 in the District of Columbia, affecting 
12,840 employees, or a total of $24,524,000 affecting 200,000 em- 
ployees. This estimate is based upon statistics compiled by the 
Bureau of the Census and which are published in Bulletin No. 94, 
entitled "Statistics of Employees — Executive Civil Service of the 
United States — 1907." But whatever the cost, this is a case of jus- 
tice long delayed, and as we are compelled to meet increasing prices 
yearly for all materials and commodities for the official conduct of 
our great governmental establishment, Congress at this time should 
give consideration to the human beings employed by this Govern- 
ment and from whom it expects honest and efficient service. 

The statistics submitted by Mr. McLarin are as follows : 

* * * The total number of persons employed in the executive civil service of 
the United States, exclusive of the Army, Navy, 62,663 postmasters, 18,376 mechanics 
and laborers at navy yards and stations, 12,850 post-office clerks at offices not having 
free delivery, and 1,031 employees of the Weather Bureau, with a number of special 
and exceptional employees not properly to be classified with other employees by 
reason of the method of their appointment or employment, is 185,874. 

The Official Register for 1915 gives the number as 488,711, including all employees 
in the Postal Service, the legislative and judicial branches of the Federal Government. 

For statistical purposes, and to avoid complicated computations, this number may 
be considered as m round numbers who will in the percentages given below be bene- 
ficiaries of the Nolan minimum-wage bill, 200,000. 

The percentages given in Bulletin 94 of the census, 1907, page 32, table 20, for the 
various rates of pay are: 

Aggregate: Less than |720 per annum, 19 per cent; $720 but less than $840, 11.7 
per cent; $840 but less than $900, 5.7 per cent; $900 but less than $1,000, 23.6 per cent. 
District of Columbia: Less than $720 per annum, 25.6 per cent; $720 but less than 
$840, 8.8 per cent; $840 but less than $900, 2.4 per cent; $900 but less than $1,000, 
6 per cent. 

Elsewhere: Less than $720 per annum, 18 per cent; $720 but less than $840, 12.2 
per cent; $840 but less than $900, 6.2 per cent; $900 but less than $1,000, 26.3 per cent. 

As these percentages do cover nearly 200,000 of the employees of the United States 
in the executive civil service on July 1, 1907, they may be taken as fairly representa- 
tive of the percentages of the salaries paid at the present timq, and may be applied 
with reasonable accuracy to the whole Government executive civil service. The 
percentage of employees receiving the lower salaries would be much less in the legis- 
lative and judicial branches of the Government than in the executive branch, as the 
salaries in the legislative and judicial branches are much higher in those cases where 
the employees' whole time is devoted to the Government work. 

It is worthy of note that the percentage of employees receiving less than $720 per 
annum of the District of Columbia is 25.6 per cent, as compared with 18 per cent of 
the employees working elsewhere who receive less than $720 per annum. As a rule, 
the employees in the District of Columbia devote their whole working day throughout 
the year to the Government service, as is not the case in a great many of the positions 
outside of Washington. 

According to these percentages, the increases in pay under the first section of this 
bill would affect 60 per cent of the employees of the United States in the executive 
civil service; 62.7 per cent of the employees outside of the District of Columbia would 
receive increases, and the pay of but 42.8 per cent of the employees in the District 
would be increased. 

The cost to the United States involved in the first section of this bill is estimated as 
follows : 

Employees now receiving less than $720 per annum would receive an increase of 
not less than $360. 

Employees now receiving less than $840 per annum would receive an increase of 
not less than $240. 



MINIMUM WAGE BILL. 15 

Employees now receiving less than $900 per annum would receive an increase of 
not less than $180. 

Employees now receiving less than $1,000 per annum would receive an increase of 
not less than $80. 

The total numbers and amounts of the increases would be : 

AGGREGATE. 
[200,000 employees.] 



Per cent. 



Employees, 
number 
affected. 



Rates now paid. 



Amounts 

of increases 

not less 

than — 



■Totals. 



19.0 

11.7 

5.7 

23.6 

60.0 



38, 000 
23, 400 
11,400 
47, 200 



Less than $720, 

S720-$840 

$840-S900 

S90O-Sl,000.... 



240 
180 
SO 



$13, 080, 000 
5, 616, 000 
2, 052, 000 
3, 776, 000 



120, 000 



24,524,000 



IN DISTRICT OF COLUMBIA. 
[30,000 employees.] 



25. 6 


7,680 

2,640 

720 

1,800 


Less than $720 

S720-$840 


$360 

240 

180 

80 


$2, 904, 800 


8 8 


633, 600 


2 4 . 


$840-8900 


129, 600 


6 .. 


$900-$l,000 


144, 000 






42 8 


12,840 


1297 


3, 812, 000 







ELSEWHERE. 
[170,000 employees.] 



18.0 

12.2 

6.2 

26.3 

62.7 



30, 600 
20, 740 
10, 540 
44, 710 



106, 590 



Less than $720 

$720-$S40 

$8i0-$900 

$900-$1,000.... 



240 
180 
80 



1201 



$11, 016, 000 
4, 977, 600 
1,897,200 
3, 576, 800 



21, 467, 600 



It is to be noted that these figures do not include employees of the legislative and 
judicial branches of the service, nor postmasters, mechanics, and laborers at navy 
yards and stations, and certain other special or technical employees. As a rule the 
employees excepted from this estimate will be found to receive considerably more than 
$1,080 per annum, and many are not wholly occupied in the Government service. 
The reason for this has been stated to be that they are much more prominent i^olitically 
than the employees in the executive branch of the service. 

Especial attention is invited to the fact that an extremely large proportion of the 
employees receiving less than even $720 per annum are of the District of Columbia, 
a place in which the cost of living is notoriously high. 

The benefits of the increases provided in tliis bill, however, apply to only about 
12,000, or nearly one-half of the employees of the United States in the District of 
Columbia, while 106,590 of the employees outside of the District of Columbia will 
be the recipients of increased pay under the first section of this bill. Those in the 
District of Columbia will get $3,812,000 more pay per annum than at present, while 
those outside of the District of Columbia will get $21,467,600 more pay per annum 
than at present. 

So, gentlemen, you see that we are pleading not only for ourselves, but for more 
than a hundred thousand of your constituents. 



Because this bill, if passed, will mean many millions of dollars in 
increased appropriations some Members of Congress might say that 
it will not set very well with the ''people back home." But when 



16 MINIMUM WAGE BILL. 

they are informed that it means considerable less than the price of 
two battle cruisers or two dreadnaughts, a number of which wiU be 
provided for at this Congress and for which there is urgent need, the 
"people back home" wiU not fhid any fault, but will be entirely in 
sympathy with the movement to place the employees of the Govern- 
ment in a position to have a living wage, so that they may live 
decently and respectably and have a kindly f eelmg for their employer, 
and that their children may have a fair chance in this life and that they^ 
too, will have respect and a truly patriotic feeling for the country of 
their birth. 

For years efforts have been made to regulate child labor, and it was 
only recently that this House passed a child-labor bill. That measure 
affects the great industries of this country; it removes the long 
existmg practice of exploiting the child of tender years in the fac- 
tories, mines, and workshops of our Nation. The Members of this 
House believed that those children should be in school and should 
have the opportunity to build up their mmds and bodies under health- 
ful conditions. Is it not equally our duty toward the low-paid Gov- 
ernment employee to see that he has a sufficient wage to enable him 
to bring up his children under decent and healthful conditions of 
mind and body ? 

This measure will foster true Americanism and is one of the few 
sound measures of preparedness that the Sixty-fourth Congress has 
had placed before it. 

There may be some who will say that $3 per day is too high a rate 
for the men and women employed by the Government. But would 
they like to labor for or try to raise a family and live on that or less ? 
Wages of the unskilled laborers all over the country have been 
advancing, and they are not far from this rate. Strikes and walk- 
outs are taking place among the unorganized unskilled workers all 
over the country for advances in wages to meet increased prices, and 
this will continue until the low-paid workers in mdustry are given 
greater consideration. 

The underpaid Government employees are mostly unorganized, but 
even where they are organized they do not strike to have their griev- 
ances adjusted. They depend upon the Government or Congress to 
treat them fairly ; and here is our opportunity, though long delayed, 
to make the Government of the United States the model employer. 

In striking contrast with this Government's treatment of its 
employees is that of Denmark, as shown in the following extract 
from our consul general, E. D. Winslow, at Copenhagen: 

[Extract from report of Consul General E. D. Winslow, Copenhagen, Denmark, Feb. 4, 1916. Printed in 
Supplement to Commerce Reports No. 4a, Mar. 29, 1916.] 

DENMARK. 

As the hardships of the war fell most heavily on those having fixed incomes and 
salaries, the Government has increased the salaries of its employees to meet the higher 
cost of living. 

The printed record of the hearings before the subcommittee contain 
a number of heartrending stories of Government employees who 
have worked in different departments for a number of years. They 
tell of their struggle for existence ; how the family has had to depend 
upon neighbors and others for charity, and in some instances were 



MINIMUM WAGE BILL. 17 

not able to purchase any new clothing for a period covering seven 
or eight years; and others testified that they had not entered a 
moving-picture show or other place of amusement in four years. 

Statements were made by individuals and those representing 
organizations of employees of conditions in the Government service, 
where employees were compelled to work overtime without extra 
compensation; also, complaints about favoritism shown in the 
matter of promotions, where length of service did not receive con- 
sideration; of misrepresentation by correspondence schools and 
others of the advantages afforded the Government employee. But 
your committee could not consider these complaints, as the bill 
before it pertained only to the question of salaries, and therefore 
confined itself to the subject matter of the bill. 

It is the belief of your committee that this is the first time in the 
history of this Government that the true conditions as affecting the 
cost of living of its low-salaried employees has ever been brought to 
the attention of any committee of Congress and so thoroughly investi- 
gated as has been the case in this instance. 

The committee was not unanimous on the amendment striking 
out section 2 of the original bill, some members holding the opinion 
that more attention should be given at this time to those employees 
receiving over SI, 080 per annum, and that a percentage advance 
should be provided for, those favoring the striking out of section 
2 being of the opinion that the lower-paid employees should be con- 
sidered at this time and that the matter of a general readjustment 
of salaries above the $1,080 grade should be made the subject of 
another bill for future consideration. 

The passage of this bill will have a tendency to bring into the 
Government service the very highest type of young men and young 
women to fill the vacancies in the lower grades and will give the 
Government the first choice in the labor market as against priva.te 
employers, thus tending to make the Government service highly 
efficient, for, after all, well-paid workers do their work efficiently 
and economically. Cheap work is always poor work, and with the 
right standard set the Government wiU profit by stimulating interest 
on the part of its employees. 

■^ o -.^._ . _.. _ 

H. Eept. 742, 64-1 2* 



